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This publication was produced by Nathan Associates Inc. for review by the United States Agency
for International Development.
DYNAMIC SPECTRUM ALLOCATION IN ASEAN Development of a Regulatory Framework for
Information Sharing among Databases
DYNAMIC SPECTRUM ALLOCATION IN ASEAN Development of a Regulatory Framework for
Information Sharing among Databases
Submitted by
Nathan Associates Inc. under
Contract No. AID-486- C-13-00004
DISCLAIMER
This document is made possible by the support of the American people through the United
States Agency for International Development (USAID). Its contents are the sole responsibility of
the author or authors and do not necessarily reflect the views of USAID or the U.S government.
ACKNOWLEDGEMENTS
This report was prepared for USAID and TELSOM/ATRC by the US-ACTI project. The lead
author of this this study was Peter Lovelock of TRPC. Dr. Peter Lovelock is Director of the
Technology Research Project Corporate (TRPC). He has more than 25 years’ experience in
telecoms, technology and media, including regulatory assessments, implementation and
execution projects, and due diligence and market entry strategic guidance projects
throughout Asia.
TRPC is a boutique consulting and research firm with over 25 years’ experience in the
telecommunications and ICT industries in the Asia-Pacific. It offers specialized advisory,
research, and training services, with a focus on regulatory and strategic business issues, and
possess an extensive network of industry experts and professionals throughout the region.
CONTENTS
Executive Summary iii
Introduction 1
1. An Audit of Dynamic Spectrum Allocation (DSA) Developments in
ASEAN 5
Dynamic Spectrum Allocation 5
Early ASEAN Deployments 6
Auditing Developments: AMS Responses 7
Country Overviews 9
2. Key Spectrum Issues in ASEAN 17
Cross-Border Spectrum Coordination Mechanisms in ASEAN 17
Harmonizing the use of the 700MHz Band 18
5G Developments and Opportunities in ASEAN 21
3. Opportunities and Challenges for an ASEAN Spectrum Information
Sharing Database 25
4. Conclusion 27
5. Recommendations 29
Appendix: Questionnaire and Key Interviewees 31
Illustrations
Figures
Figure 1: Projected ASEAN Digital Economy by 2025 1
Figure 2: How ASO Frees Spectrum 19
Figure 3: APT 700 Adoptions across the Asia Pacific Region 20
Maps
Map 1: TVWS Trials and Deployments in Southeast Asia 6
Map 2: Malaysian Territory (West and East) 11
Map 3: West Malaysia Coordination 11
Map 4: East Malaysia Coordination 11
Map 5: Myanmar Borders 12
Tables
Table 1: Overview of DSA Policies and Frameworks in ASEAN 8
Table 2: Three Categories of WSD in Singapore 13
Table 3: Total Channels and Bandwidth Available Before and After ASO 14
Table 4: Projected Analogue Switch Off (ASO) 18
EXECUTIVE SUMMARY Dynamic Spectrum Access (DSA) represents an emerging approach toward addressing the
spectrum crunch by offering a more efficient means of utilizing underused spectrum. The
real-time sharing of unused spectrum, allows for unlicensed secondary users to gain access
to previously unattainable spectrum for a range of innovative uses, such as for the Internet
of Things (IoT) and extending rural Internet connectivity. This study is a first step in working
toward a regional spectrum information sharing framework, in light of the growing demand
for spectrum, as well as ASEAN’s aims to harmonize telecommunication regulations under
the ASEAN ICT Masterplan 2020 (AIM2020). It begins to align discussions on the state and
developments of DSA in ASEAN, the opportunities in doing so, and the challenges of
developing a regulatory framework.
There is a lack of DSA activity in ASEAN where only four AMS have piloted and
deployed TVWS. In ASEAN, only four member states have actively explored the use of
TV White Spaces—a subset of DSA that utilizes unused TV broadcasting channels. Among
the AMS, Singapore is the only country to have developed a TVWS regulatory framework
and commercially deployed the technology. Indonesia and the Philippines have conducted
pilot projects on TVWS to provide wider network connectivity to rural parts of the
countries, while Vietnam has only managed to trial the uses of TVWS. In contrast, the other
AMS have made little progress so far in exploring the uses of TVWS and DSA.
As part of the study, a survey was conducted with each AMS to take stock of DSA and
spectrum sharing policies in each country. Of the ten AMS, responses were received from all
but three: Cambodia, Indonesia and the Philippines.
The survey found that all the AMS are at vastly different stages in their current and future
policies for the use of DSA. Singapore stands out as the only country with a policy on DSA,
while Brunei, Indonesia, and Vietnam have indicated that they each plan to explore the use
of DSA in the future. Further, while all the AMS participate in some form of cross-border
spectrum coordination, they are all only being conducted on a bilateral basis.
Spectrum information sharing and regional harmonization can bring economic
and social benefits to ASEAN. Aligning the use of spectrum not only simplifies cross-
border coordination and minimizes radio interference in ASEAN; it also allows for the
creation of a unified marketplace. This creates an attractive hub for device manufacturers
and foreign investors to reap economies of scale, resulting in lower-priced devices and
further spurring device adoption, leading to a virtuous cycle of growth and investment. In
turn, this fosters a conducive environment for R&D and innovation to take place in a myriad
of fields such as healthcare, education, disaster relief, and others. A unified market will
enable ASEAN to propel into the next stage of its digital economy.
Leveraging the opportunities for harmonization in the 700MHz band and 5G. As
the AMS approach their respective Analogue Switch Off (ASO) dates (latest by 2020), this is
an opportune time for them to begin taking concrete steps toward regional harmonization
of the 700MHz band. There has been strong commitment by eight of the ten AMS to the
Asia-Pacific Telecommunity 700MHz (APT 700 band) plan to harmonize the use of the
700MHz band for mobile broadband services. The Philippines only just recently permitted
the use of the band for mobile broadband in 2016, while Thailand will only repurpose the
700MHz band for mobile communications in 2029.
Additionally, 5G developments are still nascent in the region where only three (the
Philippines, Singapore, and Thailand) member states have started trialing 5G networks. As
I V D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
5G technologies and standards have yet to be defined, ASEAN can begin discussing the
possibility of adopting regionally harmonized standards and technologies, including aligning
the spectrum bands to be used for 5G.
ASEAN needs to take a proactive stance in harnessing emerging technologies.
Several challenges stand in the way of achieving an ASEAN spectrum information sharing
database. Firstly, the conservative nature of the ASEAN regulators is an obstacle to adopting
regional or internetworked databases as they will have concerns on data privacy and
security. Secondly, the AMS will be less inclined to commit to the development of new
technologies such as DSA and TVWS, or at least until larger results have been guaranteed.
Thirdly, with the exception of Singapore, all the other AMS have not developed regulations
on TVWS. However, they could potentially leverage off Singapore’s framework and adapt it
for their own countries, with the eventual aim of defining and standardizing regulations for
the region. Finally, while bilateral frequency coordination committees exist, there is no
regional committee that governs the use of spectrum on a regional basis. ASEAN should
work off the current bilateral coordination mechanisms in developing a regional spectrum
coordination committee.
Recommendations for developing an ASEAN regional framework for spectrum information
sharing
1. Countries should leverage existing cross-border coordination committees
ASEAN should work from existing cross-border coordination committees. The
FACSMAB between Singapore, Malaysia and Brunei, and the JTCs among Thailand,
Cambodia, Laos, Malaysia and Myanmar, could be expanded to include all AMS and
create a regional working group on spectrum coordination.
This group should work to propose forward-looking frameworks for advancing the
alignment of regional spectrum assignations, and engage with operators, regulators
and manufacturers across the region. The first step can begin with looking at
harmonizing the use of the 700MHz band for mobile broadband services.
2. Relevant authorities should practice open, fair and engaged conversations
The process of reaching a consensus on a cross-border spectrum information sharing
framework will require open and engaged conversations from all relevant authorities.
A multi-stakeholder approach where government regulators, telecommunication
operators and private mobile companies are involved in each step of the process will
help establish common ground among all participating bodies.
3. Knowledge sharing and cross-border collaboration should be encouraged
All AMS need to recognize the benefits – economic and social – of a regional
spectrum information sharing framework and thus, see value in cross-border
collaboration. To address this where necessary, ASEAN should study and document
the economic benefits projected and work with member states to improve
awareness.
Member states, such as Singapore, which have made progress in both TVWS and
DSA deployments, should lead the process by providing best practice examples and
existing frameworks.
Regulators and policymakers should also tap on current resources made available by
organizations such as the Dynamic Spectrum Alliance (DSA) and the Singapore White
Spaces Pilot Group (SWSPG), where ASEAN should play a lead role in the
coordinating dissemination among the AMS.
E X E C U T I V E S U M M A R Y V
4. Strengthen in-country and cross-country cybersecurity protection
The development of individual country databases in cross-border communication
opens the possibility to cybersecurity attacks and, in preparation, policymakers and
the relevant national agencies should strengthen and ensure cybersecurity protection
for and to businesses and consumers.
Cybersecurity experts and teams should be employed to ensure the necessary
surveillance and protection.
D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
INTRODUCTION The Association of Southeast Asian Nations (ASEAN) brings together ten member states of
Southeast Asia—Brunei, Cambodia, Indonesia, Laos, Malaysia, Myanmar, the Philippines,
Thailand, Singapore, and Vietnam—to promote intergovernmental cooperation and more
integrated economic development in the region. Taken as a single market, ASEAN
represents the world’s seventh largest economy and is projected to become the world’s
fourth largest economy by 2050.1 As seen in Figure 1, ASEAN has the potential to generate
an additional USD1 trillion in Gross Domestic Product (GDP) by 2025—if the
necessary infrastructure and opportunities are created. The three principle drivers in
realizing this growth in GDP are: (1) broadband access; (2) related increases in mobile
worker productivity; and (3) the resulting emergence of, and impact from, new industries.2
Figure 1: Projected ASEAN Digital Economy by 2025
Source: TRPC, 2016. Adapted from: AT Kearney 2016. The ASEAN Digital Revolution. https://www.atkearney.com/innovation/asean-innovation/asean-digital-revolution/full-report/-
/asset_publisher/VHe1Q1yQRpCb/content/the-asean-digital-revolution/10192.
While the ASEAN member states (AMS) are at significantly different stages of socio-
economic development, they are collectively guided by regional agreements to promote
overall regional development. One such masterplan is the ASEAN ICT Masterplan, which
focuses on issues specifically related to technology, communications and the digital economy,
1 World Economic Forum, 2016. 7 surprising things you probably don’t know about ASEAN.
https://www.weforum.org/agenda/2016/05/7-surprising-things-about-asean.
2 AT Kearney, 2016. The ASEAN Digital Revolution. https://www.atkearney.com/innovation/asean-
innovation/asean-digital-revolution/full-report/-/asset_publisher/VHe1Q1yQRpCb/content/the-asean-digital-
revolution/10192.
2 D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
with the aim of enabling greater ICT development in ASEAN. The ASEAN ICT Masterplan
2020 (AIM2020) is the second such masterplan of its kind, succeeding the ASEAN ICT
Masterplan 2015 which was completed at the end of 2015.3 Building upon the launch of the
ASEAN Economic Community (AEC)4 in 2015, one of the objectives of AIM2020 is to
leverage on ICT to support the AEC through enabling an interconnected and interoperable
digital economy.5 It is within this context that this report looks at Action Point 6.1.3 of
AIM2020 where the AMS have committed to “harmonize telecommunication regulations and
develop guidelines for ASEAN spectrum regulatory cooperation." 6 This can be achieved by
the following two steps laid out in AIM2020: (1) promote spectrum management
harmonization in ASEAN; and (2) study spectrum usage for newly emerging technologies and
strengthen cross-border spectrum management and coordination.7
In particular, this report looks at Dynamic Spectrum Allocation (DSA) technologies and the
development of a regional spectrum information sharing framework. Dynamic allocation of
spectrum, or real time spectrum sharing, is a new approach toward efficient utilization of
limited spectrum, and has the potential to bolster the digital economy opportunities within
ASEAN. A harmonized and regionally-coordinated approach to DSA can position ASEAN as
an attractive single marketplace for device manufacturers and as a development testbed for
DSA technologies.
This report acts as a first step in aligning discussions and developments in ASEAN around
DSA technologies, aspects of these technologies such as TV White Spaces (TVWS), and the
necessary next steps toward a regional spectrum information sharing framework.
Following an initial presentation of the project scope to ASEAN TELSOM/ATRC in August
2016, a survey was conducted with each AMS to take stock of the current and near-term
future spectrum sharing policies in each country. This forms the basis of the summation that
follows with the responses summarized within this report.
The outline of the report is as follows:
• An audit of current and future practices and policies within ASEAN on the use of
unlicensed spectrum, DSA licensing, spectrum database and information policies, and
spectrum coordination mechanisms in ASEAN;
• An analysis of key spectrum issues in ASEAN looking at cross-border mechanisms in the
region, harmonizing the use of the 700MHz band, and unlicensed spectrum and 5G
developments in the region;
• The opportunities and challenges in establishing an ASEAN spectrum information sharing
database; and
3 ASEAN, 2015. ASEAN ICT Masterplan 2015 Completion Report.
http://www.asean.org/storage/images/2015/December/telmin/ASEAN%20ICT%20Completion%20Report.pdf.
4 The AEC recognizes the benefits of promoting ASEAN as a single market in attracting investors and
generating regional economic growth. As a single market, ASEAN generates a robust GDP of USD2.5 trillion,
with an annual growth rate of 6%. AT Kearney, 2016. The ASEAN Digital Revolution.
https://www.atkearney.com/innovation/asean-innovation/asean-digital-revolution/full-report/-
/asset_publisher/VHe1Q1yQRpCb/content/the-asean-digital-revolution/10192.
5 ASEAN, 2016. ASEAN ICT Masterplan 2020. http://www.mptc.gov.kh/files/2016/03/499/1.pdf.
6 ASEAN, 2016. ASEAN ICT Masterplan 2020. http://www.mptc.gov.kh/files/2016/03/499/1.pdf.
7 ASEAN, 2016. ASEAN ICT Masterplan 2020. http://www.mptc.gov.kh/files/2016/03/499/1.pdf.
I N T R O D U C T I O N 3
• Recommendations for developing an ASEAN regional framework for spectrum
information sharing.
The report concludes with recommendations for ASEAN policymakers to consider in order
to develop a framework for spectrum information sharing and work toward regional
spectrum harmonization.
D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
1. AN AUDIT OF DYNAMIC
SPECTRUM ALLOCATION (DSA)
DEVELOPMENTS IN ASEAN
DYNAMIC SPECTRUM ALLOCATION Despite political, economic and social differences, all ten AMS face similar challenges in the
efficient use and management of spectrum. Advances in the forms and applications of
technology have led to a dramatic surge in the demand for spectrum and greater wireless
connectivity. The rise in demand for spectrum to serve the rapidly rising number of mobile
users in ASEAN coupled with the increasing number of spectrum-intensive services made
available over mobile broadband networks (3G, 4G, and soon 5G), have crowded out the
available spectrum. Such services include everything from social media platforms and
messaging, to streaming video services, and smart city applications utilizing the Internet of
Things (IoT). This spectrum crunch has led to a growing need to identify alternative
technologies or innovative ways to optimize existing unused spectrum. One such technology
is the use of DSA, which is gaining prominence globally.
DSA encompasses a range of emerging techniques such as cognitive radios and
geolocationally aware databases to detect and make available unused spectrum for use on
secondary unlicensed spectrum bands. DSA represents a revolutionary shift from the
traditional and time-delayed methods of allocating spectrum. Rather than operating based on
rigidly allocated bands, it enables the sharing of unused spectrum for multiple users based on
real-time availability. DSA allows for a far-more efficient approach of utilizing spectrum by
enabling a far greater volume of spectrum users – and uses – at any given time. Furthermore,
as DSA utilizes the unlicensed spectrum, it lowers the barriers of entry and costs for
operators and companies, which otherwise might not be able to afford expensive spectrum
licenses. In turn, these lower barriers of entry allow for greater and more rapid innovation
as more operators and manufacturers may be able to enter the market, creating a virtuous
cycle of innovation and investment.
One subset of DSA that has gained the most traction in ASEAN thus far is the use of TV
White Spaces (TVWS). TVWS refers to the unused TV broadcasting channels in the Very
High Frequency (VHF) and Ultra High Frequency (UHF) spectrum, which have traditionally
been used as “buffer” bands between active channels to prevent interference.8 These unused
bands can be repurposed on an unlicensed basis for wireless broadband Internet access and
machine-to-machine (M2M) communications, and has even been referred to as “super Wi-
Fi” for its long-range propagation characteristics; its signals cover an expanse of ten
kilometers, hundred times that of traditional Wi-Fi.9 Furthermore, TVWS have the ability to
penetrate through common obstacles such as buildings, rough terrain and thick foliage.10
8 Carlson, 2016. TV White Space - Breakthrough Technology. http://www.carlsonwireless.com/tv-white-space/.
9 Carlson, 2016. TV White Space - Breakthrough Technology. http://www.carlsonwireless.com/tv-white-space/.
10 Microsoft Super Wi-Fi Technologies, 2016. https://www.microsoft.com/en-us/research/wp-
content/uploads/2016/02/spectrum-microsoft-super-wifi-overview.pdf.
6 D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
These characteristics have allowed for a dramatic reduction in network rollout costs as
networks built for deploying TVWS require fewer cell sites and base stations.
EARLY ASEAN DEPLOYMENTS This section examines the progress (or lack thereof) of DSA and TVWS developments in
ASEAN. Not surprisingly, each AMS is at quite a different stage in its deployment of DSA.
This is due in part to the very different levels of market development and maturity across
the region, as well as the differing priorities for regulators and governments of each AMS.
Singapore, for example, stands out for its progress in commercially deploying TVWS,
following strong government commitment to develop a TVWS regulatory framework. Other
AMS, such as Laos, Malaysia, and Myanmar, fall on the opposite end of the spectrum, having
made little progress so far in exploring the uses of TVWS and DSA.
Map 1 provides an overview of early TVWS activities within ASEAN. Out of the ten AMS,
only four have actively explored the use of TVWS, with Singapore the only country to have
commercially deployed TVWS. In line with the country’s Smart Nation Program, Singapore
has encouraged the deployment of TVWS technologies via IoT and M2M networks and
services, to further improve the quality of life. For example, TVWS have been used with
smart sensors deployed on golf courses to monitor moisture, video surveillance systems in
housing development blocks to monitor security in car parks and public walkways, and used
to provide communications and relay systems within tourist or logistics networks (Gardens
by the Bay; container terminal systems) to provide more immersive interactive experiences.
In the Philippines and Indonesia, TVWS deployments have been used as a means to bridge
the digital divide within these countries by providing wider network connectivity in rural and
remote places. In Vietnam, TVWS has been trialed for its performance and interference
issues, however long term deployment of TVWS has been a challenge due to the difficulties
in finding available spectrum in the VHF and UHF bands.
The versatility and range in the potential applications of TVWS accounts for the varied use
and deployment of TVWS technologies in ASEAN, and needs to be borne in mind when
assessing the potential for network deployment in the region.
Map 1: TVWS Trials and Deployments in Southeast Asia
Source: TRPC
Vietnam
Indonesia
Singapore
Philippines
Conducted TVWS trials
TVWS deployment
A N A U D I T O F D S A D E V E L O P M E N T S I N A S E A N 7
AUDITING DEVELOPMENTS: AMS RESPONSES In preparing this report, TRPC sent questionnaires to ASEAN Telecommunication
Regulators Council (ATRC) representatives of each AMS, seeking feedback on relevant
spectrum management policies. The questionnaires covered the policies and uses of
unlicensed spectrum, cross-border spectrum coordination, spectrum information sharing,
TVWS policies and activities, DSA developments, and future plans for DSA usage, if any. Out
of ten AMS, detailed responses were received from all but three countries, namely
Cambodia, Indonesia, and the Philippines. Table 1 below provides an overview of the
responses while the country summaries describe these in further detail, and where possible
is supplemented by additional desk research.
8 D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
Table 1: Overview of DSA Policies and Frameworks in ASEAN
Countries Use of unlicensed
spectrum Spectrum
sharing Cross-border
coordination Spectrum information
sharing TVWS
Policies TVWS Activities DSA
Policies Plans for
future DSA
use
Brunei ✓ ✓ (FACSMAB) ✓
Cambodia ✓ N.A ✓ N.A N.A
Indonesia ✓ N.A ✓ N.A N.A ✓ ✓
Laos ✓ ✓
Malaysia ✓ ✓ (FACSMAB), JTC, JCC
Myanmar ✓ ✓ ✓
Philippines ✓ N.A N.A N.A N.A ✓
Singapore ✓ ✓ ✓(FACSMAB) ✓ ✓ ✓ ✓ ✓
Thailand ✓ ✓ ✓(JTCs) (feasibility project)
Vietnam ✓ ✓ ✓ ✓(within Vietnam) ✓(has conducted trials) ✓
= Have not yet submitted responses. Details retrieved from interviews and desk research.
A N A U D I T O F D S A D E V E L O P M E N T S I N A S E A N 9
As shown in Table 1, all the AMS allow for some unlicensed spectrum use, for example the
use of short range low powered devices such as wireless mics and Wi-Fi devices. Further, all
the AMS participate in some form of cross-border spectrum coordination to manage
interference across neighboring borders. This is a good basis for the potential development
of an ASEAN regulatory framework for spectrum information sharing across borders to
optimize spectrum usage. Countries can build on these coordination committees for a larger
ASEAN coordination framework, and take the first steps toward regional spectrum
harmonization. Additionally, four out of ten AMS expressed interest in future planning and
usage of TVWS/DSA technologies. Four of ten have also indicated some experience in
spectrum sharing. A willingness of the AMS to prioritize DSA development and spectrum
sharing is key to the progress of a regional spectrum information sharing framework.
COUNTRY OVERVIEWS
Brunei
Unlicensed spectrum use: The Authority for Info-communications Technology Industry
(AITI) has published its technical specifications for Short Range Devices (SRDs) operating in
the unlicensed spectrum.
Spectrum sharing and spectrum information sharing: At this stage, Brunei has
neither experience nor policies in the fields of spectrum sharing and spectrum information
sharing.
Cross-border spectrum coordination: Brunei is part of the Frequency Assignment
Committee Singapore, Malaysia and Brunei Darussalam (FACSMAB), which was set up in
1948 to manage the cross-border spectrum coordination among Brunei, Malaysia and
Singapore. The committee has four main functions: (1) to coordinate radio frequency
assignments within the region bounded by the three countries; (2) to resolve cross-border
radio frequency interference; (3) to establish appropriate working arrangements, including
setting up sub-committee and inviting industry participation; and (4) to escalate if necessary
any unresolved matters to the Heads of Regulatory Authorities for resolution.11 The
committee conducts monthly meetings throughout the year and adheres to the Constitution
and Convention of the ITU.12
TVWS Activities: Brunei has not conducted any trials or activities on TVWS or DSA.
Plans for future use of DSA: The AITI has indicated that they are formulating new
frameworks on unlicensed spectrum usage and spectrum sharing. They are also considering
utilizing TVWS on the UHF band, although details are not yet available.
Cambodia
Cambodia has not submitted a response to the survey questionnaire.
Unlicensed spectrum use: Cambodia utilizes the unlicensed spectrum, however the
details of the usage are not available.
11 FACSMAB, 2016. Roles of FACSMAB. https://facsmab.org/about-us/roles/.
12 FACSMAB, 2016. Roles of FACSMAB. https://facsmab.org/about-us/roles/ .
10 D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
Cross-border spectrum coordination: Cambodia held its third Joint Technical
Committee (JTC) with Laos in February 2016 to discuss spectrum coordination and
assignment issues along their common border.13
TVWS Activities: Cambodia has not conducted any trials or activities on TVWS or DSA.
Indonesia
Indonesia has not submitted a response to the survey questionnaire.
Unlicensed spectrum use: Indonesia utilizes the unlicensed spectrum, however the
details of the usage are not available.
Cross-border spectrum coordination: Indonesia is part of a Joint Committee on
Communications (JCC) with Malaysia to coordinate spectrum interferences.
TVWS Activities: Under the 2015-2019 Indonesia Broadband Plan (IBP), the Ministry of
Communications and Information Technology (MCIT) partnered with Integra LLC (funded
by USAID), Microsoft, Hitachi (funded by the Government of Japan), to trial a broadband
network based on TVWS technology in Yogyakarta, Indonesia. The trial in a rural area
established two links, providing wireless broadband connectivity to a school and a health
clinic; a public Internet center and a small agribusiness.14 The deployment took place
between early 2014 and March 2015, lasting three months, with an average throughput of
8.5-9Mbps. The trial demonstrated that TVWS is a commercially viable technology for rural
connectivity as it produced favorable results. The school reported a 55% time-savings on
administrative tasks, the agribusiness reported a 15% increase in monthly income, and the
health clinic saw how broadband technology improved their payment system for health
insurance claims.15
Plans for future use of DSA: MCIT is in active discussions on the future commercial
deployment of TVWS and DSA technologies.
Laos
Unlicensed spectrum use: Laos utilizes the unlicensed spectrum however, the details of
the usage are not available.
Spectrum sharing, spectrum information sharing and DSA: At this stage, Laos has
neither experience nor policies in the fields of spectrum sharing, spectrum information
sharing and DSA. It has also not conducted any TVWS trials or activities. Laos has no plans
for the future use of TVWS/DSA.
Cross-border spectrum coordination: Laos holds a JTC with Thailand on the
coordination and assignment of frequencies along the Laos-Thailand border. This committee
meets yearly and represents one of three JTCs that Thailand shares with its neighboring
countries.
Malaysia
13 Telecommunication Regulator of Cambodia, 2016. https://www.trc.gov.kh/the-3rd-joint-technical-
committee/.
14 USAID, 2015. Indonesia Rural Connectivity Pilot: Final Report. http://www.integrallc.com/wp-
content/uploads/2015/05/Indonesia-Rural-Connectivity-Pilot-Final-Report.pdf.
15 USAID, 2015. Indonesia Rural Connectivity Pilot: Final Report. http://www.integrallc.com/wp-
content/uploads/2015/05/Indonesia-Rural-Connectivity-Pilot-Final-Report.pdf.
A N A U D I T O F D S A D E V E L O P M E N T S I N A S E A N 11
Unlicensed spectrum use: Malaysia’s use of unlicensed spectrum is governed by the Class
Assignment issued under Section 169 of the Communications and Multimedia Act 1998
(CMA 98). Devices operating in the unlicensed spectrum must follow the conditions as listed
in the Class Assignment document issued by the Commission. The latest Class Assignment
document was issued on 21 December 2015 - “Class Assignment No. 3 of 2015.
Spectrum sharing, spectrum information sharing and DSA: At this stage, Malaysia
has neither experience nor policies in the fields of spectrum sharing, spectrum information
sharing and DSA. It has also not conducted any TVWS trials or activities. Malaysia has no
plans for the future use of TVWS/DSA.
Cross-border spectrum coordination: Malaysia holds bilateral and multilateral
coordination committees with Thailand, Singapore, Brunei and Indonesia. Malaysia also
participates in bi-yearly meetings with Thailand; monthly meetings with Singapore and Brunei
in the FACSMAB; and shares a JCC with Indonesia. As Malaysia shares its borders with these
nations, coordinating spectrum usage is key to avoiding cross-territorial conflicts. Map 2
below shows the Malaysian territory, while Maps 3 and 4 show the parts of Malaysia where
frequency coordination is required.
Map 2: Malaysian Territory (West and East)
SEA City Maps, 2016. Source: http://www.seacitymaps.com/malaysia/malaysia_map.jpg
Map 3: West Malaysia Coordination Map 4: East Malaysia Coordination
MCMC, 2016. Source: http://www.skmm.gov.my/skmmgovmy/media/General/pdf/4-International-Coordination.pdf.
Myanmar
Unlicensed spectrum use: Myanmar has formalized policies on the use of the unlicensed
spectrum, with technical specifications on the operation of SRDs, in preventing interference
with the licensed spectrum. Devices operating in the unlicensed spectrum must adhere to
12 D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
spectrum rules and are not protected from interference with licensed and other license-
exempt operating devices. The following frequency bands are allocated for unlicensed usage:
13553-13567kHz, 26957-27283kHz, 40.66-40.70MHz, 2400-2500MHz, 5725-5875MHz and
24-24.25GHz.
Spectrum sharing: Spectrum sharing can be carried out between/among the licensees by
entering into agreements according to the spectrum
rules. The terms and conditions of such agreements
must be fair, reasonable and transparent for the
sharing of radio spectrum. The bands for spectrum
sharing are governed by the National Frequency
Allocation Table (NTFA).
Cross-border spectrum coordination: Myanmar
and Thailand hold coordination meetings on a case-by-
case basis. According to Myanmar’s survey response,
there have also been spectrum border interference
along Tachileik, Muse, Myawaddy and Kaw Thaung (as
seen in Map 5), where conflict resolutions have been
necessary to minimize interference between these
borders.
Spectrum information sharing and DSA: At this
stage, Myanmar has neither experience nor policies in
the fields of spectrum sharing, spectrum information
sharing and DSA. It has also not conducted any TVWS
trials or activities. Myanmar has no plans for the future
use of TVWS/DSA.
The Philippines
The Philippines has not submitted a response to the survey questionnaire.
Unlicensed spectrum use: The Philippines utilizes the unlicensed spectrum however, the
details of the usage are not available.
TVWS Activities: TVWS technology has been used for public service initiatives such as
disaster relief, for example, following Typhoon Haiyan in 2013, and for the USAID’s
Ecosystems Improved for Sustainable Fisheries (ECOFISH) Project where TVWS technology
helped facilitate registration and transmitted data to the Department of Agriculture to
produce more fish, feed more people and generate more jobs.16 Since 2014, Nityo Infotech,
a Singaporean tech company, has been funding the development of TVWS pilot sites with a
SGD5 million investment.
Since the pilot trials of TVWS as a means for disaster relief, the Information and
Communications Technology Office (ICTO) of the Philippines has adopted TVWS
16 Tetra Tech, 2015. ECOFISH Project Team Helps Improve Fisheries Management in the Philippines.
http://www.tetratech.com/en/articles/ecofish-project-team-helps-improve-fisheries-management-in-the-
philippines.
DICT, 2015. TV White Space Deployment in Philippines the Largest in Asia. http://www.dict.gov.ph/tv-white-
space-deployment-in-ph-the-largest-in-asia/.
Microsoft, 2014. One Year on from Haiyan. http://news.microsoft.com/en-
gb/2014/11/07/oneyearonfromhaiyan/#sm.00000a2abtc1ebd86sb4c7eh1qors#txviXQkXfxAc4kDp.97.
Map 5: Myanmar Borders
Source: Google Maps 2016
A N A U D I T O F D S A D E V E L O P M E N T S I N A S E A N 13
technologies in providing free Wi-Fi Internet access to other public places in the country.17
In doing so, they utilize the White Space Database earlier developed by Microsoft and the
Philippine government to provide communications network for disaster victims.18
Additionally, Globe is currently pilot-testing the use of TVWS for broadband use. The
adoption of TVWS for broadband would improve the network connectivity in remote and
rural areas as the TVWS technologies require less infrastructure costs and thus, less
investments from telecommunication providers.
Singapore
Unlicensed spectrum use: In June 2014, the Infocomm Development Authority (IDA)
published a regulatory framework for TVWS operations in the VHF and UHF bands. The
framework outlines the conditions for devices and regulators utilizing TVWS. This came in
line with the launch of Singapore’s Smart Nation Initiative in November 2014, as it led to an
increase in the demand for spectrum usage. The framework laid out the policy and technical
parameters on the use of White Space Devices (WSDs), geo-location databases and the use
of the 700MHz band. According to the framework, each WSD has to be equipped with a
unique identifier, based on international/industry standards, for tracking and verification
purposes (as seen in Table 2 below).
Table 2: Three Categories of WSD in Singapore
Fixed WSD *Mode I WSD (Portable) **Mode II WSD
(Portable)
Ability to Query the Geo-location Database Yes No Yes
In-built Geo-location Capacity Optional No Yes
Maximum Power Level 4W EIRP 100mW EIRP 100mW EIRP
Tunable Power Level Optional Optional Optional
* Mode I WSD operate as a client WSD that is capable of only communicating with other WSDs under the control of a
serving master WSD and does not operate with a geo-location capability
** Mode II WSD may also operate as a master WSD capable of communicating directly with a geo-location database, and
operating as a network, transmitting to and receiving from one or more fixed WSDs or personal/portable WSDs.
Source: IMDA, 2014. Singapore Regulatory Framework for TV White Space operations in the VHF/UHF bands 2014
https://www.imda.gov.sg/~/media/imda/files/inner/pcdg/consultations/20130617_whitespace/explanatorymemo.p
df?la=en.
Spectrum sharing and spectrum information sharing: IDA (restructured as the
Infocomm Media and Development Authority [IMDA] as of October 2016), also practices
two methods of spectrum sharing: (1) Administrative Assignment (localized use) – where
spectrum is allocated on an administrative basis and operations are confined to a specific
location, and (2) DSA – where spectrum is made available on an unlicensed basis and
managed by a geolocation database. The use of geolocation databases is the mandated
method for TVWS spectrum access; they set the operational parameters by controlling the
co-channel, cross-border and license-exempt device coexistence, preventing interference.19
The databases operate on a non-exclusive sharing basis, where primary and secondary
spectrum users are not granted priority access; spectrum access is non-exclusive and
17 National Institute of Information and Communications Technology, 2015. Philippines Adopts NICT’S TV
White Space Database for Free Wi-Fi Project. https://www.nict.go.jp/en/press/2015/05/07-1.html.
18 Microsoft, 2016. White Spaces Database. http://whitespaces.microsoftspectrum.com/.
19 IDA, 2014. Regulatory Framework for TV White Space operations in the VHF/UHF bands.
https://www.imda.gov.sg/~/media/imda/files/inner/pcdg/consultations/20130617_whitespace/explanatorymemo.pdf
?la=en.
14 D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
spectrum usage functions on a first come, first served basis.20 Presently, StarHub, Network
Genetics and DNNA Solution Pte Ltd, are the three approved TVWS Geolocation Database
providers in Singapore.21
Additionally, until the Analogue Switch Off (ASO) planned for end-2017, the 700MHz band
will be used for TVWS operations as well. However, the 700MHz band will be dedicated to
International Mobile Telecommunications (IMT) once ASO is completed. Table 3 on the
next page shows the total number of channels and bandwidth available before and after
ASO.
Cross-border spectrum coordination: Singapore is also part of the FACSMAB together
with Brunei and Malaysia.
TVWS Activities: Beginning with commercial trials in 2012, Singapore has been pioneering
the use of TVWS in ASEAN. Some notable examples of TVWS trials and projects include:
smart metering of the air-conditioning meters at the NUS U-Town, wireless backhaul
connectivity at Sentosa, smart sensors to monitor moisture of golf courses and track buggies
at Singapore Island Country Club, wireless video surveillance across the country, public Wi-
Fi and surveillance at Gardens by the Bay and video surveillance for car park security and lift
systems in public housing buildings. Singapore is the only AMS that has commercially
deployed TVWS technologies beyond trials and pilots.
Table 3: Total Channels and Bandwidth Available Before and After ASO
TVWS Channels Total No.
Channels
Total Bandwidth
Before ASO 181 – 188 (Channel 6)
209 – 223 MHz (Channel 10 and 11)
502 – 518 MHz (Channel 25 and 26)
614 – 622 MHz (Channel 39)
630 – 710 MHz (Channel 41 to 50)
718 – 742 MHz (Channel 52 to 54)
750 – 774 MHz (Channel 56 to 58)
790 – 806 MHz (Channel 61 and 62)
3 VHF
channels; and
21 UHF
channels
189 MHz
After ASO 174 – 188 MHz (Channel 5 and 6)
195 – 202 MHz (Channel 8)
209 – 230 MHz (Channel 10 to 12)
470 – 534 MHz (Channel 21 to 28)
614 – 694 MHz (Channel 39 to 48)
6 VHF
channels; and
18 UHF
channels
186 MHz
Source: Singapore Regulatory Framework for TV White Space operations in the VHF/UHF bands 2014 https://www.imda.gov.sg/~/media/imda/files/inner/pcdg/consultations/20130617_whitespace/explanatorymemo.p
df?la=en.
Thailand Unlicensed spectrum use: Under Thailand’s unlicensed spectrum policy, published in May
2015 by the Spectrum Management Bureau, Office of National Broadcasting and
Telecommunications Commission (NBTC), devices must comply with the frequency bands,
power limits and technical characteristics stated in the regulations.
20 Wireless Innovation Forum, 2014. Dynamic Spectrum Sharing Annual Report 2014.
http://www.slideshare.net/zahidtg/wireless-innovation-forum-dynamic-spectrum-sharing-annual-report-2014.
21 IMDA, 2016. TV White Space. https://www.imda.gov.sg/regulations-licensing-and-consultations/frameworks-
and-policies/spectrum-management-and-coordination/spectrum-planning/tv-white-space.
A N A U D I T O F D S A D E V E L O P M E N T S I N A S E A N 15
NBTC is also working on reviewing and updating the use of unlicensed spectrum.
Spectrum sharing: Thailand practices spectrum sharing in 11 frequency bands of ranges 5-
30GHz. Licensing for fixed service is performed on a per link basis. Additionally, the
regulations for spectrum sharing between Fixed Satellite Service (FSS) and Fixed Service (FS)
and FSS and Mobile Service (MS) are under review.
NBTC plans to introduce a framework/policy for spectrum sharing in the upcoming
Spectrum Management Masterplan, which is currently undergoing finalization.
Cross-border spectrum coordination: Thailand holds bilateral cross-border spectrum
coordination (JTCs) with four countries: Malaysia, Laos, Cambodia, and case-by-case
meetings with Myanmar.
Spectrum information sharing and DSA: There is no established framework for
spectrum information sharing and Thailand does not have plans for the future development
of TVWS policies or DSA.
TVWS Activities: According to the NBTC, Thailand carried out a feasibility study project
for TVWS in Thailand; though the trial use of TVWS was never set up. Further information
on the study is also unavailable.
Vietnam Unlicensed spectrum use: Devices operating on the unlicensed spectrum must comply to
a non-interference and non-protected approach, and must not cause interference to
authorized radio stations. If a non-compliant short range device causes harmful interference
to authorized radio stations, the user must stop operating the transmitter or correct the
problem causing the interference.
Spectrum sharing: In order to better facilitate a more efficient and effective use of
spectrum, radio devices operating in radio-communication services i.e. fixed service
(microwave links), mobile services (private mobile radio) and broadcasting services, are
required to share frequency channels with one another. Furthermore, Vietnam employs
computer-aided programs that allow users operating in different locations to reuse the same
frequency, if separated by sufficient distance.
Cross-border spectrum coordination: Vietnam holds annual meetings with its
neighboring countries to negotiate cross-border frequency coordination, especially in mobile
cellular services. According to its survey response, these meetings have proven to be
successful as they have reached agreements on the usage of frequency channels with
neighboring countries.
Spectrum information sharing: The Ministry of Information and Communications (MIC)
uses a spectrum information sharing framework within Vietnam.
TVWS Activities: While Vietnam does not have any formal policy/framework governing
TVWS, it has indicated in its survey response that it had conducted several trials and studies
of TVWS in five cities including Ho Chi Minh City (urban, suburban), Hanoi (urban), Da
Nang (urban, coastal area), Phu Tho (mountain) and Dong Thap (rural), between 2013–2015.
The trials were conducted by Vietnam Television (VTV) with the MIC, and used a
geolocation database approach. The first trial test focused on the preliminary performance
assessment of TVWS technology in these five cities, and the second trial test focused on
examining interference issues between TVWS systems and TV stations in the UHF band.
The coverage was over 7km urban, 3-6.5km rural and 4km mountainous areas. It was
deployed in the 470–694MHz band with a channel bandwidth of 8MHz and data rate of
18.29/15Mbps. Despite these trials, long term deployment of TVWS has proven to be
16 D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
difficult, as finding available spectrum in VHF and UHF has been a challenge (although the
digital dividend from Vietnam’s ASO in 2020 promises to free up more spectrum in these
bands).
Plans for future use of DSA: MIC has expressed clear interest in furthering
developments in TVWS. Currently, MIC is conducting active discussions on DSA, while
work is also being done on updating the current policy on the use of unlicensed spectrum.
The revisions will update new emerging short range devices and applications such as wireless
power transmission technology, LTE-unlicensed technology, automotive radar, and multi-
gigabit wireless systems.
2. KEY SPECTRUM ISSUES IN ASEAN This section looks at some of the key spectrum issues in ASEAN. Three issues, in particular,
stand out: (1) cross-border spectrum coordination mechanisms in ASEAN; (2) harmonizing
the use of the 700MHz band; and (3) 5G developments and opportunities in ASEAN. These
spectrum issues are especially relevant as they influence future policies in the region and can
potentially contribute to the development and deployment of an ASEAN spectrum
information sharing framework. Additionally, they present an opportunity for ASEAN to
adopt a regionally harmonized approach toward using spectrum.
CROSS-BORDER SPECTRUM COORDINATION
MECHANISMS IN ASEAN The borderless nature of spectrum necessitates coordination mechanisms between
neighboring countries to avoid issues of interference and to facilitate spectrum planning by
national regulators. As shown above, there are multiple cross-border spectrum coordination
mechanisms already in place within ASEAN. Of the countries that submitted their survey
responses, all indicated they participate in some form of cross-border spectrum
coordination committee. These include the FACSMAB, the bilateral JTCs and the JCC
between Malaysia and Indonesia.
Established in 1948, the FACSMAB manages cross-border spectrum coordination between
Brunei, Malaysia and Singapore. It has four key functions: (1) to coordinate radio frequency
assignments within the region bounded by the three countries; (2) to resolve cross-border
radio frequency interference; (3) to establish appropriate working arrangements, including
setting up sub-committee and inviting industry participation; and (4) to escalate if necessary
any unresolved matters to the Heads of the Regulatory Authorities for resolution. Several
agreements such as band partitioning (radio frequency channel/block allotment plan) and
band sharing (first-come-first-serve basis) have been made between the three countries. The
FACSMAB has been effective in ensuring minimal radiofrequency interferences along the
common border areas. Joint measurement exercises have also been conducted along the
Brunei-Malaysia border, to study the feasibility of coexistence for television broadcasting
services, and to address the issue of cross-border cellular signal spillage on the 900MHz
band.
The JTCs are bilateral committees that Thailand organizes with Malaysia, Laos, and
Cambodia. These JTCs meet on a regular basis to coordinate and assign frequencies along
the country borders. Thailand also corresponds with Myanmar when necessary. Through the
JTCs, Thailand has established agreements on the coordination signal parameters,
coordination types and coordination distances across the border areas. As indicated in the
survey responses, Myanmar and Thailand have, in the past, experienced cross-border
conflicts due to spectrum interference. These committees were thus crucial for the
mitigation of cross-border conflicts. Malaysia and Indonesia similarly engage in cross-border
spectrum coordination via the JCC.
While these existing cross-border spectrum coordination mechanisms have been
instrumental in ensuring minimal radiofrequency interferences and mitigating cross-border
spectrum disputes, they are limited in their scope due to the bilateral nature of these
committees. Presently, ASEAN still has yet to make any progress toward spectrum
information sharing, and regional spectrum harmonization. A regional harmonization of
spectrum use greatly simplifies the coordination effort among AMS by establishing a set of
18 D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
rules to minimize interference in the region. Further, in doing so, this also helps create a
unified marketplace for mobile devices and other products.22 As a single marketplace,
ASEAN will be able to attract investments from device manufacturers, where according to
GSMA, harmonization can save manufacturers 10% off material costs, and improve time-to-
market releases.23 As a single unified market, manufacturers are able to achieve economies
of scales, ultimately resulting in lower priced devices and further spurring adoption, leading
to a virtuous cycle. Further, regional harmonization creates a conducive environment for
R&D and innovation to take place in other services and applications such as healthcare,
education, disaster relief, and others.
HARMONIZING THE USE OF THE 700MHZ BAND Since early 2013, all AMS have agreed to shift their television broadcasting systems from
analogue to digital by 2020.24 The switchover to digital TV broadcasting will improve the
quality, efficiency and production of broadcasting services. Table 4 shows the projected ASO
dates for the respective AMS.
Table 4: Projected Analogue Switch Off (ASO)
ITU, 2015. Digital Broadcasting Asia-Pacific Region. https://www.itu.int/en/ITU-D/Regional-
Presence/AsiaPacific/Documents/Events/2015/August-RDF2015/Session-1/S1_Sireerat_Bunnag.pdf.
Figure 2 shows how ASO will lead to a re-stacking of frequencies, resulting in a digital
dividend and more available spectrum which may be repurposed for other uses.
22 GSMA, 2012. Harmonisation and Regional Band Plans. http://www.gsma.com/spectrum/wp-
content/uploads/DigitalDividend/DDtoolkit/importance-of-harmonisation.html.
23 GSMA, 2012. Harmonisation and Regional Band Plans. http://www.gsma.com/spectrum/wp-
content/uploads/DigitalDividend/DDtoolkit/importance-of-harmonisation.html.
24 Pattaya Mail, 2013. Special Report: ASEAN targets to switch completely to digital broadcasting by 2020:
http://www.pattayamail.com/thailandnews/special-report-asean-targets-to-switch-completely-to-digital-
broadcasting-by-2020-20720 .
Country Projected ASO Date Country Projected ASO Date
Brunei 2020 Myanmar 2020
Cambodia 2020 Philippines 2020
Indonesia 2018 Singapore End-2017
Laos 2020 Thailand 2020
Malaysia 2018 Vietnam 2020
K E Y S P E C T R U M I S S U E S I N A S E A N 19
Figure 2: How ASO Frees Spectrum
TRPC, 2016. Adapted from: https://www.itu.int/en/ITU-D/Regional-
Presence/AsiaPacific/Documents/Events/2015/August-RDF2015/Session-1/S1_Sireerat_Bunnag.pdf.
According to the Asia-Pacific Telecommunity 700MHz (APT 700 band) plan, the digital
dividend from ASO may lead to a multi-regional harmonization of the 698-806MHz band
(commonly referred to as the 700MHz band) – with the aim that it may be used globally for
broadband mobile services. The APT members recognized that a global harmonized band for
the use of mobile services would create significant economies of scale, thereby driving down
the cost of mobile devices, as well as providing strong wide area coverage and in-building
penetration.25 According to the Ericsson, the allocation of the digital dividend to mobile
communications could potentially lead to a USD1 trillion additional increase in GDP by
2020, tax revenue growth of USD215 billion, the creation of 1.4 million new businesses and
2.7 million new jobs in the Asia Pacific.26 The full adoption of the APT 700 band plan
represents an opportunity for ASEAN to align with a larger ecosystem of manufacturers that
will drive down costs of infrastructure, network and devices.27
Recognizing the potential benefits that ASEAN stands to gain from a regionally and globally
harmonized use of the 700MHz band, eight of the ten AMS have formally agreed to adopt
the APT 700 band plan. As shown in Figure 3, Brunei, Indonesia, Malaysia and Singapore first
announced their commitments to the plan at the Infocomm Media Business Exchange in
2013. Subsequently, Cambodia, Laos, Myanmar and Vietnam also committed to adopting the
APT 700 band plan. The Philippines has also already begun deploying mobile broadband
services on the 700MHz band.28 This leaves Thailand as the only AMS who has yet to
commit to the APT 700 band plan, until at least only after 2029.
25 Ericsson, 2014. APT 700: A truly global LTE band. https://www.ericsson.com/res/docs/2013/ericsson-
apt700-creating-a-truly-global-band.pdf.
26 Ericsson, 2014. APT 700: A truly global LTE band. https://www.ericsson.com/res/docs/2013/ericsson-
apt700-creating-a-truly-global-band.pdf.
27 GSMA, 2013. APT 700 whitepaper. http://www.gsma.com/newsroom/wp-content/uploads/2013/09/Telstra-
_-Asia-Pacific-Telecommunity-APT-700-MHz-Whitepaper-FINAL.pdf.
28 In the Philippines, the release of 70MHz of spectrum in the 700MHz band by San Miguel Corp (which
previously held a monopoly of the 700MHz band) to local telcos Smart Communications and Globe Telecom, has
20 D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
Figure 3: APT 700 Adoptions across the Asia Pacific Region
Nera Economic Consulting, 2016. http://www.nera.com/content/dam/nera/publications/2016/700_MHz_band_Hans_Ihle_NERA.pdf.
Thailand is the only country yet to fully adopt the APT 700 band plan. Instead, Thailand has
announced that it will allocate the 700MHz band for digital TV broadcasting following its
ASO, and will only repurpose the band for mobile communications after 2029. According to
a study by GSMA and the Boston Consulting Group (BCG), Thailand could lose out on
USD14.8 billion in GDP by 2020, and the creation of 55,000 more jobs if it did not allocate
the 700MHz band to mobile in 2015.29 Further, Thailand’s use of the 700MHz band for
digital broadcasting could lead to cross-border frequency interferences with its neighbors i.e.
Indonesia, Cambodia, Laos, Malaysia and Myanmar, which have agreed to adopt the APT 700
band plan. Although Thailand’s ASO is scheduled by 2020, Thailand has stated that the
700MHz band will only be repurposed for telecommunications, after the 470-510MHz range
is returned for use in broadcasting in 2029.30 The 470-510MHz range is currently held by ten
governmental agencies.31
The harmonization of the 700MHz band for mobile broadband services should be at the
forefront of ASEAN’s digital agenda as it represents a large opportunity for regional
spectrum coordination and optimization. As many of the AMS approach the ASO date, it is
an opportune time to begin discussions on how ASEAN can make concrete steps toward
regional harmonization of the 700MHz band for mobile broadband services. This may be led
and facilitated by an ASEAN working group to look specifically into regional harmonization,
allowed them to co-use the 700MHz band to offer mobile broadband services, in line with the APT 700 band
plan.
29 GSMA, 2013. GSMA Urges Government of Thailand to Allocate Digital Dividend Spectrum to Mobile.
http://www.gsma.com/newsroom/press-release/gsma-urges-government/.
30 Bangkok Post, 2014. Reallocation of the 700 MHz by 2029. http://www.bangkokpost.com/tech/local-
news/421067/reallocation-of-700-mhz-by-2029.
31 Bangkok Post, 2014. Reallocation of the 700 MHz by 2029. http://www.bangkokpost.com/tech/local-
news/421067/reallocation-of-700-mhz-by-2029.
K E Y S P E C T R U M I S S U E S I N A S E A N 21
beginning with the 700MHz band. With nine of the 10 AMS already having committed to
using the 700MHz band for mobile broadband services, a regionally harmonized use of the
band could be a precursor to future spectrum harmonization initiatives such as for the use
of 5G and DSA.
5G DEVELOPMENTS AND OPPORTUNITIES IN ASEAN A major forthcoming spectrum coordination issue that lies ahead for ASEAN is the
development of the fifth generation of wireless networks, or 5G. ITU has set a deadline to
define 5G standards by 2020, where the network will be commercially deployed.32 While
the technologies and standards for 5G are still being discussed and developed, 5G is set to
offer gigabit-level speeds, higher capacity, lower latency and a more efficient network.
While 4G networks were able to boost wireless speeds by up to ten times faster than 3G,
5G will potentially increase speeds by 1,000 times that of 4G.33 To provide for faster speeds,
5G networks will have to operate in higher frequencies bands, tapping onto the millimeter
(mm) and centimeter (cm) wave spectrum. The mm wave spectrum refers to frequencies
between the 30GHz and 300GHz bands and cm wave refers to frequencies between the 3
and 30GHz band.34 These ranges of frequencies are ideal for 5G usage as they allow for
large transfers of data in short amounts of time. And, as 5G will need to cater to multiple
case scenarios, it will operate both below, to provide wide area coverage, and above the
6GHz, for high and reliable data transmission.
5G will also reduce latency to 1ms.35 This extremely-low latency speed in turn, aids in 5G’s
increased reliability. 5G’s massive multiple input, multiple output (MIMO) systems offer
significant improvements in wireless data rates and link reliability by using greater number of
antennas at base transceiver stations (BTS).36 This allows for data consumption from more
users in a dense area without consuming more radio spectrum or causing interference.37
Furthermore, 5G requires far less power in endpoint devices than 4G, insofar that its
battery might outlast the devices themselves.38 As 5G will be able to offer higher bandwidths
at low latencies, and at lower power usage, it will help lead to the growth in IoT, where
Gartner predicts that there will be more than 20 billion devices connected to the Internet
by 2020.39 Furthermore, 5G can be calibrated to support a wide array of IoT applications,
such as for smart cities, health care, self-driving cars, wearables and other time-sensitive and
32 RCR Wireless News, 2016. 5G standards process: ITU and 3GPP lay groundwork.
http://www.rcrwireless.com/20160719/internet-of-things/5g-standards-process-tag31-tag99.
33 Vulcan Post, 2016. 5 Things you need to know about Singapore’s impending blazing fast 5G network.
https://vulcanpost.com/583674/5-things-on-singapore-impending-5g-network/.
34 StarHub, 2016. Nokia and StarHub achieve 4.3 Gps speeds in 5G showcase in Singapore.
http://www.starhub.com/about-us/newsroom/2016/november/nokia-and-starhub-achieve-4-3gbps-speeds-in-5g-
showcase-in-singa.html.
35 GSMA, 2014. Understanding 5G: Perspectives on future technological advancements in mobile.
https://www.gsmaintelligence.com/research/?file=141208-5g.pdf&download.
36 Industrial IoT 5G, 2016. Understanding massive MIMO and what it means for 5G.
http://industrialiot5g.com/20160805/5g/massive-mimo-5g-tag31-tag99.
37 Industrial IoT 5G, 2016. Understanding massive MIMO and what it means for 5G.
http://industrialiot5g.com/20160805/5g/massive-mimo-5g-tag31-tag99.
38 Forbes, 2016. 5G: Enterprise disruption on the horizon.
http://www.forbes.com/sites/jasonbloomberg/2016/07/04/5g-enterprise-disruption-on-the-horizon/#4ff6587275f3.
39 Telecom Asia. 2016. e-Brief: 5G. http://www.telecomasia.net/content/telecom-asia-e-brief-5g.
22 D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
high capacity applications.40 5G will be a catalyst for a whole ecosystem of technology
development. It will lead to a fully connected and converging physical and cyber world,
where 5G will revolutionize real-time analytics, datacenter design, location-based web
services, social networks, digital currencies, remote surgery, drones and precision-sensitive
devices.41
Though no global 5G bands have been standardized, some of the bands that have been
suggested for 5G include the 3.4-3.6GHz, 4.4-4.9GHz, 20GHz, 28GHz and 37-39GHz
bands.42 As with all mobile networks, harmonization for the use of 5G spectrum bands at a
global level will be challenging, and experts tout regional harmonization as a more attainable
target.43 Japan has proposed the use of spectrum bands 3.5GHz, 4.5GHz and 28GHz as
potential candidates for 5G in 2020, while the US is looking at the 28GHz, 37GHz and
39GHz bands.44
In ASEAN, only three out of the ten AMS thus far have reported to be developing and
trialing 5G networks, namely the Philippines, Singapore, and Thailand. In the Philippines,
Smart Communications has reported achieving transmission speeds of 2.5Gbps using
100MHz with latency of 1ms, in a trial with Nokia.45 In Singapore, local telcos Singtel and
StarHub have separately teamed up with multinational telecoms giants like Huawei, Ericsson
and Nokia to trial 5G. In a trial between Singtel and Ericsson, tests were able to achieve
throughput speeds of 27.5Gbps and latency of 2ms.46 Singtel has stated that it would have
some semblance of a working 5G network by 2017, intending to fully roll out the technology
by 2019.47 In another 5G trial between Nokia and StarHub, mobile broadband speeds
reached speeds of 4.3Gbps and latency of 1ms.48 The NBTC enlisted Ericsson to trial 5G,
achieving a peak throughput of 5.7Gbps. Thailand aims to have 5G broadband connectivity
available in big cities and in over 75,000 villages nationwide by 2018.49
40 Telecom Asia. 2016. e-Brief: 5G. http://www.telecomasia.net/content/telecom-asia-e-brief-5g.
41 Forbes, 2016. 5G: Enterprise disruption on the horizon.
http://www.forbes.com/sites/jasonbloomberg/2016/07/04/5g-enterprise-disruption-on-the-horizon/#4ff6587275f3.
42 Bangkok Post, 2016. Ericsson pushing Thailand toward 5G technology.
http://www.bangkokpost.com/tech/local-news/1109101/ericsson-pushing-thailand-toward-5g-technology.
43 FierceWireless, 2016. Spectrum for 5G likely to be harmonised on regional, not global scale: panel.
http://www.fiercewireless.com/europe/spectrum-for-5g-likely-to-be-harmonised-regional-not-global-scale-panel.
44 FierceWireless, 2016. Spectrum for 5G likely to be harmonised on regional, not global scale: panel.
http://www.fiercewireless.com/europe/spectrum-for-5g-likely-to-be-harmonised-regional-not-global-scale-panel.
45 Telegeography, 2016. Smart, Nokia demonstrate 5G on “live” network in the Philippines.
https://www.telegeography.com/products/commsupdate/articles/2016/12/19/smart-nokia-demonstrate-5g-on-live-
network-in-the-philippines/.
46 Singtel, 2016. Journey to 5G: Singtel and Ericsson first to showcase 5G in Southeast Asia.
https://www.singtel.com/about-Us/news-releases/journey-to-5g-singtel-and-ericson-first-to-showcase-5g-in-
southeast-asia.html.
47 Vulcan Post, 2016. 5 Things you need to know about Singapore’s impending blazing fast 5G network.
https://vulcanpost.com/583674/5-things-on-singapore-impending-5g-network/.
48 StarHub, 2016. Nokia and StarHub achieve 4.3 Gps speeds in 5G showcase in Singapore.
http://www.starhub.com/about-us/newsroom/2016/november/nokia-and-starhub-achieve-4-3gbps-speeds-in-5g-
showcase-in-singa.html.
49 TeleGeography, 2016. NBTC taps Ericsson for Thai 5G trial; will auction 700MHz, 850MHz, 1800MHz,
2600MHz spectrum by 2020. https://www.telegeography.com/products/commsupdate/articles/2017/01/26/nbtc-
taps-ericsson-for-thai-5g-trial-will-auction-700mhz-850mhz-1800mhz-2600mhz-spectrum-by-2020/.
K E Y S P E C T R U M I S S U E S I N A S E A N 23
5G developments are still very nascent in the region, and policymakers should begin looking
at promoting a regional harmonized approach toward 5G. As 5G technologies and standards
have yet to be defined, ASEAN regulators can begin discussing the possibility of adopting
regionally harmonized standards and technologies, including the possibility of harmonizing
and aligning the spectrum bands for 5G devices in ASEAN to operate on. Harmonizing 5G
developments in ASEAN represents an opportunity for ASEAN to come together as a single
unified market. This creates an attractive location for device manufacturers to invest, as they
may be able to achieve economies of scales, ultimately resulting in lower priced devices and
further spurring 5G device adoption, leading to a virtuous cycle.
3. OPPORTUNITIES AND
CHALLENGES FOR AN ASEAN
SPECTRUM INFORMATION
SHARING DATABASE While it would be ideal for ASEAN to set up a regional spectrum database to serve the region,
the sensitivities around where the database would reside, and who would control the database
makes it an unlikely approach. An alternative solution, as suggested in the interviews, is the
establishment of individual databases in each country, which can work interoperably with one
another and communicate on a real-time basis.50 As demonstrated in this report, such a
regionally-coordinated spectrum approach will be economically and socially beneficial for
ASEAN, and should be worked toward.
A number of experts interviewed made the point that spectrum sharing should not be viewed
simply as a utilitarian solution to freeing up spectrum, but also as a means for increasing growth
and investment in the region. The freeing up of (and access to) spectrum drives innovation and
newer technologies which, in turn, leads to greater growth in the ICT sector and thus, more
investment— creating a virtuous cycle of investment. However, a majority of the experts had
their reservations about the practical feasibility of such a database and framework—at least in
the short term—as there are multiple challenges that will need to be addressed.
Firstly, the conservative nature of the ASEAN regulators will likely be an obstacle to adopting
and implementing a regional database, or national databases internetworked on a regional basis.
Such a framework will require trust and cooperation among AMS, and the respective AMS
governments may not be willing to participate in cross-border sharing of real-time information
for fear of breach of sensitive information. Each regulator’s focus will still primarily be on its
domestic responsibilities, especially regarding data privacy and security. Further complicating the
issue is the broad diversity of DSA devices, applications, and services that need to be managed.
Some of these issues could be managed by new technologies such as the use of blockchain for a
distributed and decentralized database, could be used to record DSA usage in an open and
transparent manner, mitigating issues of security, authenticity and verification.
Secondly, the AMS will be less inclined to prioritize and commit to new technologies unless
commercial deployments results have been guaranteed. As the US, UK, and Singapore each have
their own respective TVWS regulatory frameworks, manufacturers will need to tweak their
products for each individual market to account for these differences. As individual markets, the
market opportunities for manufacturers and users are still too small for commercial viability. If
50 As part of this study TRPC spoke with numerous international experts involved in TVWS and DSA around the
globe (see Appendix for more details).
26 D Y N A M I C S P E C T R U M A L L O C A T I O N I N A S E A N
ASEAN were to establish a harmonized unified single market for DSA and other technologies, it
would represent a sizeable market for manufacturers and investors. This however, remains
something of a chicken-and-egg challenge: regulators do not want to prioritize resource in a
sector that is speculative or risk unfairly tilting a market, and so will wait to see commercial
viability; meanwhile, manufacturers will not invest until they can see a viable market to invest
into. By taking a proactive stance in this area and providing a regional market of
scale, ASEAN could attract vendors and developers to prioritize the region at this
early and influential stage of development.
Thirdly, a majority of the experts expressed that the AMS should leverage off Singapore’s
current TVWS regulatory framework and adapt it to cater to their individual countries. This
would potentially save the trouble of developing new models. In fact, one of Singapore’s
geolocation database providers offers a reconfigurable platform that allows incumbent data,
geographic data, rule sets and propagation models to be specified for specific countries. This can
be re-configured for different regulators in different AMS. Furthermore, this platform
incorporates a regulator dashboard that provides useful information for regulators in simple,
graphical and exportable formats.
According to one US-certified database provider, the deployment of individual national spectrum
databases might not be too distant in the future, if the AMS could agree to adopt Singapore’s
database regulations, or something similar, and utilizing what has already been developed.
Databases could then be further calibrated to allow for licensed and unlicensed spectrum to
coexist, and even for exclusion zones to be implemented along borders to prevent cross-border
interferences of high-powered applications or sensitive case scenarios. It is only once regulations
are defined and standardized that investment will come into the sector in scale. However, a
number of AMS face a scarcity of governmental and regulatory resources in the development of
such technologies. To this end, a number of the experts interviewed offered to run or
participate in regional regulatory workshops on the technologies and opportunity.
Finally, ASEAN should capitalize on the current frequency coordination committees in place i.e.
FACSMAB and the JTCs to discuss the possibilities of spectrum harmonization for TVWS and
other DSA bands. This could act as a precursor toward spectrum coordination at a regional
level, which ultimately is the goal for ASEAN to work toward.
4. CONCLUSION This report is effectively an initial conclusion-in-progress; in other words, it is the beginning of a
longer move toward a more formalized ASEAN-coordinated spectrum information network,
based on what already exists and operates well. The long-term objective can and should remain
a regional database, but this could be the eventual internetworking of national databases that are
simply interlinked or interoperable in real time.
As illustrated in this study, ASEAN still has a lot of work to do in establishing the commercial
and deployment incentives for TVWS and DSA technologies to gain widespread traction—
despite the inherent possibilities. These are necessary and important shifts for the
telecommunications industry in the region to take to further optimize the use of spectrum. As
the AMS move toward their respective ASO deadlines, it is also crucial to consider a more
efficient and dynamic use of freed up spectrum. A regionally-harmonized 700MHz band for
mobile broadband, or TVWS applications, would strengthen ASEAN as an attractive market for
investors and manufacturers, thus kick-starting a virtuous cycle of innovation and investments in
the region. It would also help mitigate and minimize cross-border frequency interferences.
Spectrum fragmentation within the region could lead to a loss of USD3.4 billion in GDP and
96,000 jobs in the countries.51 Building stronger regional spectrum coordination will help
ASEAN toward realizing the potential USD1 trillion GDP gains from its digital economy by 2025.
In establishing an ASEAN spectrum information sharing database, collaboration between and
among the AMS is key. As seen, the AMS are at significantly different stages in their TVWS
deployment process. Further, each country can and will use TVWS for quite different reasons—
at least in the early stages—i.e. Indonesia and the Philippines have used TVWS technologies for
bridging the digital divide whereas, Singapore has used it to further accelerate its digital
economy through smart city and IoT applications. AMS should aid one another in skills and
resource sharing, to develop a stronger ASEAN market for TVWS and DSA technologies. As
elaborated upon in this report, each AMS and ASEAN as a whole, stand to gain economically
and socially from a regionally-coordinated use of spectrum. Together, these steps would speed
up the process of a regional spectrum information sharing framework and propel ASEAN into
the next stage of its digital economy.
51 GSMA, 2013. GSMA Urges Government of Thailand to Allocate Digital Dividend Spectrum to Mobile.
http://www.gsma.com/newsroom/press-release/gsma-urges-government/.
5. RECOMMENDATIONS In order to develop an ASEAN regional framework for spectrum information sharing, we
propose the following solutions:
1. Countries should leverage existing cross-border coordination committees
ASEAN should work from existing cross-border coordination committees. The
FACSMAB between Singapore, Malaysia and Brunei, and the JTCs among Thailand,
Cambodia, Laos, Malaysia and Myanmar, could be expanded to include all AMS and
create a regional working group on spectrum coordination.
This group should work to propose forward-looking frameworks for advancing the
alignment of regional spectrum assignations, and engage with operators, regulators and
manufacturers across the region. The first step can begin with looking at harmonizing the
use of the 700MHz band for mobile broadband services.
2. Relevant authorities should practice open, fair and engaged conversations
The process of reaching a consensus on a cross-border spectrum information sharing
framework will require open and engaged conversations from all relevant authorities. A
multi-stakeholder approach where government regulators, telecommunication operators
and private mobile companies are involved in each step of the process, will help establish
common ground among all participating bodies.
3. Knowledge sharing and cross-border collaboration should be encouraged
All AMS need to recognize the benefits – economic and social – of a regional spectrum
information sharing framework and thus, see value in cross-border collaboration. To
address this where necessary, ASEAN should study and document the economic benefits
projected and work with member states to improve awareness.
Member states, such as Singapore, who have made progress in both TVWS and DSA
deployments, should lead the process by providing best practice examples and existing
frameworks.
Regulators and policymakers should also tap on current resources made available by
organizations such as the Dynamic Spectrum Alliance (DSA) and the Singapore White
Spaces Pilot Group (SWSPG), where ASEAN should be a lead role in the coordinating
dissemination among the AMS.
4. Strengthen in-country and cross-country cybersecurity protection
The development of individual country databases in cross-border communication opens
the possibility to cybersecurity attacks and, in preparation, policymakers and the relevant
national agencies should strengthen and ensure cybersecurity protection for and to
businesses and consumers.
Cybersecurity experts and teams should be employed to ensure the necessary
surveillance and protection.
APPENDIX: QUESTIONNAIRE AND
KEY INTERVIEWEES
Questionnaire
US-ACTI Study on Dynamic Spectrum Access in ASEAN
Developing a regulatory framework for Information Sharing among Databases in ASEAN
Section 1: Existing Spectrum Regulation and Policy
1. Is there a current policy on the use of unlicensed spectrum? (If yes, please provide details
including relevant bands and policy requirements)
a. How is interference from unlicensed usage currently monitored and managed?
2. Is there an existing licensing framework (or policy) for spectrum sharing? (Bands/ Details)
a. Does the government have experience with spectrum sharing?
3. Is there a specific policy or licensing/registration framework for TVWS? (Bands/ Details)
a. Have you had any trials in the use of TVWS? (Provide details; if not, is there
anything preventing such a trial or development?)
4. Is there an existing policy or licensing framework for dynamic spectrum
allocation? (Bands/Details)
5. Are there existing cross-border spectrum coordination frameworks (or
mechanisms) in place?
a. How is cross-border spectrum coordination with neighbouring countries
currently managed?
b. Have there been any recent spectrum conflicts that required resolution?
Section 2: Planned Spectrum Regulation and Policy
1. Are there plans to introduce or update a policy on the use of unlicensed spectrum?
(Please provide details including relevant bands and policy requirements)
2. Are there plans to introduce or update a framework or policy for spectrum sharing?
(Please provide details including relevant bands and policy requirements)
3. Are there plans to explore or utilise TVWS?
(Please provide details including relevant bands and policy requirements)
4. Are there to plans to introduce or update a framework for the use of dynamic
spectrum allocation?
(Please provide details including relevant bands and policy requirements)
Section 3: Spectrum Information Policies and Practices
1. How is spectrum update information currently disseminated by the government?
A P P E N D I X Q U E S T I O N N A I R E A N D K E Y I N T E R V I E W E E S
(Please provide details)
2. Is there a framework for spectrum information sharing?
(Please provide details, including the use of databases to manage and share such information)
3. Are there plans to address or update this issue (spectrum information sharing and/or
spectrum database management)?
Key Interviewees A number of industry experts with experience in DSA and TVWS technologies and deployments
in the region, the US and the UK, were interviewed through the course of this research. Many
interviews were brief or for background research and clarification.
The following interviewees, however, were particularly helpful and ASEAN should consider
engaging with these individuals and their companies in further dialogue, and possible workshops,
moving forward:
Name Company Title Email
Jeffrey Yan Microsoft Director,
Technology Policy
Peter Stanforth Spectrumbridge CTO, Founder [email protected]
Heikki Kokkinen Fairspectrum CEO, Co-founder [email protected]
Prof. Simon Saunders Google Access
Technology
Principal
